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CPBRD FORUMC O N G R E S S I O N A L P O L I C Y A N D B U D G E
T R E S E A R C H D E PA R T M E N T
Assessment of the efficiency And effectiveness of the
RefoRestAtion PRogRAm of the denR
OctOber 2013 NO. 2013-03
This article is based on the study presented by Dr. Danilo C.
Israel on 3 July 2013 at the House of Representatives as part of a
seminar series on Zero-Based Budgeting. The Forum was organized by
the Congressional Policy and Budget Research Department and
Philippine Institute for Development Studies in partnership with
the Committee Affairs Department (Cluster 2). The study assesses
the reforestation program of the Department of Environment and
Natural Resources, i.e., whether the program has been efficient and
effective in achieving its objectives.
Dr. Danilo C. Israel, Senior Research Fellow of Philippine
Institute for Development Studies, presented an assessment of the
Reforestation Program of the DENR.
Background Dr. Danilo C. Israel, Senior Research Fellow of the
Philippine Institute for Development Studies (PIDS), started his
presentation by discussing the importance of Zero-Based Budgeting
(ZBB) approach in budget decision-making. In 2011, the Aquino
administration instituted this approach to assist in the budget
evaluation of the different government programs. Through this
approach, programs and projects that are not delivering their
intended results or outcomes are either terminated or reduced in
funding requirements. In contrast, efficient and effective programs
are provided with additional budget to sustain their services,
especially in poverty reduction.
The reforestation program of the DENR is one of the projects
assessed by PIDS using the ZBB approach to determine if the program
has been successful in attaining its objective of mitigating the
adverse impact of climate change on the environment.
The specific objectives of the study are: a) to assess the
accomplishment of the reforestation program of the Department of
Environment and Natural Resources (DENR) for the past 20 years and
determine the causes of delays in its implementation; b) to
determine if the program
has been implemented efficiently and effectively in achieving
its objectives; c) to understand the National Greening Program
(NGP) in terms of its coverage, modalities, annual targets and cost
and see if it addresses the issues and problems identified in the
reforestation program and the measures to ensure the success of the
program; and d) to assess existing plans for reforestation and
other tree planting programs and suggest measures for improvement
considering the annual targets and annual funding requirements of
DENR out of the goal set under the NGP.
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Assessment of the efficiency And effectiveness of the
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Figure 1TargeTs in area and Trees PlanTed oF The naTional
greening Program, 2011-2016
Source: DENR NGP Brochure
In his study, Dr. Israel measured the efficiency of the program
based on secondary data from the DENR, Commission on Audit (COA),
Local Government Units (LGUs) and other sources. He measured
efficiency of the program by using the ratio of number of hectares
planted to the cost of planting. In determining the effectiveness
of the program, he compared the actual performance or
accomplishment to the pre-set targets that were established.
Finally, the effectiveness was measured in terms of the level of
satisfaction of the various stakeholders involved in the
program.
reforestation laws, programs and plans
After presenting the objectives and methodology of the study,
Dr. Israel discussed the issues and challenges in the
implementation of reforestation policies and programs in the
country.
Reforestation laws. There are numerous laws and other legal
instruments for reforestation program in the country. However, the
level of understanding of these documents may still be inadequate
especially among stakeholders at the ground level. The study
recommends for the laws on reforestation be summarized or
simplified from their legalistic forms into plain and easy to
understand local terms. These materials can then be reproduced and
distributed to peoples organizations (POs) and other local
stakeholders, making them more aware on how these are being
implemented and improving their participation in the implementation
of reforestation programs.
Reforestation programs. Since 1986, various reforestation
programs have been implemented by the government. Dr. Israel
pointed out that although there have been individual program
assessments, a comprehensive assessment of all these programs is
still lacking. He suggested for a bigger effort towards a complete
review of all these programs in terms of their outcomes which can
be basis for planning for future programs.
National Greening Program (NGP). In 2011, President Aquino
issued Executive Order (EO)
26 declaring the implementation of the NGP, a government
priority program to reduce poverty, promote food security,
environmental stability and biodiversity conservation, and to
enhance climate change mitigation and adaptation. The program seeks
to plant 1.5 billion seedlings in 1.5 million hectares of public
lands nationwide in six years from 2011 to 2016 (Figure 1).
Dr. Israel questioned the desired targets of the NGP, citing
that the desired coverage is more than twice the governments
accomplishment for the past 25 years, which adds to only 730,000
hectares. He also added that the target of 1.5 million hectares of
public lands to be reforested is also more than double the target
of the Philippine Development Plan (PDP) 2011-2016 of 600,000
hectares of increased forest cover by 2016 (NEDA 2011).
Based on the study, the basis of the targets set for the NGP has
not been clearly explained. Dr. Israel is concerned whether these
targets are achievable given the limited resources at hand, the
short number of years available, and the past performance of
reforestation projects in the country. He added that it would also
help if the NGP can elaborate further on why such a target was set
nationally, as well as regionally as contained in the commodity
roadmap. Thus, the government should provide a clear rationale or
explanation in the setting of targets to erase some doubts that the
program is more of a politically expedient propaganda of the
government.
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Congressional PoliCy and Budget researCh dePartment
Table 1naTional ForesTaTion Program TargeTs oF The 1990
mPFd, 1987-2000 (000 hecTares)
1990 Master Plan for Forestry Development (MPFD). The 1990 MPFD
is one of the two major sectoral plans that were prepared for the
forestry sector in the last twenty years. The main objective of the
plan was to prepare a long-term 25-year plan for the development of
forestry. The 1990 MPFD has an annual forestation target of 100,000
hectares for a total of 1.4 million hectares for the 1987 to 2000
period (Table I).
1
Agency Annual Total DENR 30 420 Other National Government
Agencies 3 42 Local Government 12 168 Others 5 70Total Government
Sector 50 700 TLA 25 350 Lessee, industry 10 140 Private landowner
5 70 Others 10 140Total Private Sector 50 700Grand Total 100
1,400
Dr. Israel pointed out that the target of 1.4 million hectares
for 14 years was relatively conservative compared to the 1.5
million hectares targeted by the NGP for six (6) years. The annual
increment of the 1990 MPFD target of 100,000 hectares was also more
uniform and consistent compared to the annual increments of the NGP
target which rapidly increased from 100,000 hectares in 2011 to
300,000 hectares in 2013 before flattening out at 300,000 hectares
thereafter. The very high NGP targets represented a big departure
from the conservative targets of the 1990 MPFD.
2003 Revised MPFD. The 2003 Revised MPFD was formulated with
numerous objectives for the forestry sector, among the most notable
of which was to assess the accomplishment of the 1990 MPFD relative
to its objectives, and to re-evaluate and update the plan as
needed. The plan estimated that for the next 12 years of its
implementation, the country would need to plant 460,000 hectares to
satisfy plantation wood demand with plenty to spare
for the export demand. The plan also explained that many regions
in the country have comparative advantage with regard to attaining
high plantation yield and that planting must concentrate on these
areas to attain economic efficiency.
According to Dr. Israel, the 2003 Revised MPFD target of
planting 460,000 hectares in 12 years was even more conservative
than the 1990 MPFD targets. He explained that the lower targets may
have been due to the non-attainment of the 1990 MPFD targets. He
was also concerned whether the scaling down of the targets from the
1990 MPFD to the 2003 revised MPFD was considered and taken into
account when the NGP targets were set.
analysis of the reforestation program of the denr
Following the objectives of the study, methodology, and
reforestation policies, the next part of Dr. Israels presentation
shows the overall performance of the reforestation program of the
government since 1973. He also discussed the performance of the
1990 MPFD, 2003 Revised MPFD and the NGP in terms of total area and
seedlings planted. The study evaluated the performance of these
programs by comparing targets to the actual accomplishments,
including their budget allocations.
Overall performance (Total area reforested). The area reforested
by DENR and other government agencies generally grew at a positive
rate during the period of 1974 to 2009. Growth rates were highest
in the 1970s. From 1974 to 2009, the average annual growth rate in
the area reforested by the DENR was at 35.89%. The area reforested
by both government and non-government sectors also grew annually
from 1974 to 2009, at an average rate of 24.84% (Table 2). Based on
available data, it appears that the reforestation program of the
government over time has been performing quite well.
Performance under the 1990 MPFD. Based on past analyses
conducted on specific reforestation programs, the 1990 MPFD had
under-achieved in
Source: DENR 1990
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Assessment of the efficiency And effectiveness of the
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Table 2 area reForesTed by secTor, average annual growTh
raTes, 1973-2009 (in hecTares)
terms of physical targets (DENR 2003). Of the 1.3 million
hectares of forest plantations targeted to be planted between 1991
and 2000, the MPFD planted only 0.68 million hectares during the
period or an accomplishment rate of only 50% Underachievement was
also reported for the individual activities under the 1990 MPFD
(Table 3). Among the issues cited in hindering the attainment of
the program include weak institutional arrangements and program
implementation.
Table 3 summary oF TargeTs and accomPlishmenTs relaTed
To reForesTaTion under The 1990 mPFd
The output/cost ratios (area planted/regular budget) are also
computed to give some indication of the efficiency of the DENR in
its reforestation function (note that a higher ratio implies
increasing efficiency and vice versa). The results show that the
annual average output/cost ratio from 1994 to 2003 based on
coverage by the 1990 MPFD was 0.14. This ratio, as explained by Dr.
Israel shows
1
Year Area Planted (ha)Regular Budget
(in thousand pesos)Output /
Cost Ratio1994-2003Total 217,924 1,546,164
0.14Average 21,792 154,616Average annual growth rate 12.24
13.762004-2009Total 130,717 2,518,132
0.05Average 21,786 419,689Average annual growth rate 95.58
128.831994-2009Total 348,641 4,064,296
0.09Average 21,790 254,019Average annual growth rate 45.57
59.78
Table 4area PlanTed, regular budgeT For PlanTaTion
esTablishmenT and mainTenance and ProTecTion oF The denr, and
area PlanTed/regular
budgeT raTio, 1994-2009
Moreover, the accomplishment rate from 1991 to 2003 based on
areas covered by the 1990 MPFD was only 43%, with a target of 1.3
million hectares to only 564,279 hectares reforested (Table 5).
This validates that the 1990 MPFD targets were not been
attained.
1
Target (1990 - 2000) Accomplishments780 km of
greenbelts/roadside planting No records except for seedling planted
(2.1 million from 1990-2002)
in Metro Manila. Many of those planted have died, or replaced,
removed or destroyed due to new infrastructure like road
widening.
1.3M hectares of forest plantations 600,000 hectares
accomplishedAround 15,000 hectares developed under FSP
40,000 hectares of pine plantations 1,700 hectares
accomplished
95,000 hectares of rattan plantations 11,959 hectares
established Source: DENR
1
YearsGovernment Sector Grand Total
(Government Sector +Non-Government Sector)DENR Total
(DENR + Other Government Agencies)
Average Annual Growth Rates1974-1979 60.79 70.32 85.881980-1989
19.85 20.84 13.961990-1999 27.28 19.32 5.282000-2009 48.07 42.47
24.71(1974-2009) 35.89 33.65 24.84
Source: DENR
that you can reforest 0.14 hectares of land with every 1
thousand pesos from 1994 to 2003. On the other hand, the annual
average output/cost ratio from 2004 onwards based on areas not
covered by the 1990 MPFD was only 0.05. For the whole period of
1994 to 2009, the annual average ratio has been decreasing by 0.09
(Table 4). This trend shows that the efficiency of the DENR in its
reforestation program through the years has declined.
Source: DENR
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Congressional PoliCy and Budget researCh dePartment
Table 5area reForesTed by secTor in The PhiliPPines, TargeT
and accomPlishmenT under The 1990 mPFd, 1991-2003 (in
hecTares)
1
Year Government Sector
Non-Government Sector
Grand Total
1991 73,602 19,437 93,0391992 24,304 16,289 40,5931993 6,347
12,864 19,2111994 18,032 31,519 49,5511995 21,841 43,392 65,2331996
18,869 27,227 46,0961997 49,301 16,936 66,2371998 33,219 9,149
42,3681999 31,184 10,983 42,1672000 21,740 5,892 27,6322001 26,524
4,920 31,4442002 20,681 4,939 25,6202003 13,195 1,893 15,088
Total 564,279Target 1,300,000% Accomplished 43%
Performance under the 2003 Revised MPFD. The plan targeted that
for the next 12 years of its implementation, 460,000 hectares or
38,000 hectares annually would be planted for commercial
plantation. However, there is no available data on the area covered
by commercial plantation since 2004. Using available data, Dr.
Israel assumed that the target has not been attained. He explained
that from 2004 to 2009, the total area reforested by both the
government and non-government sectors was only 170,207 hectares or
28,384 hectares annually, way below the target of 38,000 hectares
annually set by the 2003 MPFD for commercial plantation. The
accomplishment rate of the plan covering the period of 2004 to 2009
is at 75%, which is higher compared to the accomplishment of the
1990 MPFD (Table 6). But still, reforestation targets under this
plan were also not attained.
DENR performance report. In contrast to the findings made by Dr.
Israel for the 1990 MPFD and the 2003 Revised MPFD, DENR reported
that from 1990 to 2011, the targets set by the department for areas
reforested were attained for most years. Since 2001, reforestation
accomplishments
Source: DENR
Table 6 area reForesTed by secTor in The PhiliPPines, TargeT
and accomPlishmenT under The 2003 revised mPFd, 2004-2009 (in
hecTares)
1
Year Government Sector
Non-Government Sector
Grand Total
2004 12,436 7,902 20,3382005 7,187 9,311 16,4982006 4,476 2,747
7,2232007 25,024 2,813 27,8372008 27,752 15,857 43,6092009 53,842
950 54,792
Total 170,297Target 228,000% Accomplished 75%
exceeded targets annually except for 2009 (Table 7). Dr. Israel
pointed out for a need to reconcile data he has made with the
accomplishments of the 1990 MPFD and the Revised MPFD. However, he
explained that the inconsistency of results may be due to the
different target levels set by the DENR and the plans.
He also noted that DENR targets from 2004 onwards are varied
with annual targets lower than those of the 2003 Revised MPFD.
These low targets resulted in the high accomplishment rates in
these years.
Table 7areas reForesTed in The PhiliPPines, 1990-1992,
1995, 1997 and 2001- 2011
Source: DENR Planning and Evaluation Division
1
Year Target Accomplished %1990 127,648 191,663 1501991 54,733
93,039 1701992 31,257 40,592 1301995 87,463 65,234 751997 64,230
66,236 1032001 22,693 31,440 1392002 22,910 25,620 1122003 14,914
15,087 1012004 15,495 20,333 1312005 13,400 16,499 1232006 6,129
8,809 1442007 8,939 27,838 3112008 29,538 43,610 1482009 57,668
54,789 952010 35,925 36,875 1032011 105,938 119,759 113
Source: DENR
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Assessment of the efficiency And effectiveness of the
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For 2012, DENR again missed its target, accomplishing only
132,710 hectares out of the 150,000 hectares targeted or an
accomplishment rate of only 88%. Among the regions, only Regions
III, IVA, IVB, IX, NCR and ARMM did not attain their targets. For
this period, the highest accomplishment rate comes from other
partners with 178% (Table 8).
Overall, the NGP has been a success in attaining its targets of
area planted. It surpassed its targets in both years at the
national level.
Table 8ngP accomPlishmenT rePorT (in hecTares)
1
ParticularsFor CY 2011, As of December 31, 2011 For 4th Quarter
2012, As of February 1, 2013
Target Area Area Planted % Accomplished Target Area Area Planted
% Accomplished
National 100,027 128,558.11 129 200,000 221,753 111
Other Partners - 31,021.80 - 50,000 59,053 178
DILG - 15,372.99 - - - -
DENR-NGP 100,027 82,163.32 82 150,000 132,710 88
CAR 6,838 6,671.67 98 9,409 9,455 100
R-1 5,000 5,080.17 102 7,121 7,307 103
R-2 3,616 4,305.03 119 5,994 6,777 113
R-3 5,547 5,548.03 100 9,032 8,446 94
R-4A 4,735 4,759.89 101 9,225 8,907 97
R-4B 4,999 5,150.98 103 6,392 6,045 95
R-5 5,584 6,079.68 109 8,034 8,036 100
R-6 4,033 3,963.47 98 8,313 9,482 114
R-7 5,632 5,736.76 102 5,743 6,980 104
R-8 8,105 8,105 100 5,134 6,145 100
R-9 4,804 4,804.68 100 6,155 6,079 99
R-10 4,336 4,336.80 100 8,195 8,234 100
R-11 5,514 5,734 104 6,249 6,249 100
R-12 4,705 5,007.50 106 7,664 8,295 108
R-13 5,000 5,522.89 110 7,790 7,817 100
NCR 350 329.77 94 977 915 94
CSLC - - - 34,613 15,531 45
ARMM 588 - 0 1,776 597 34
Central Office 19,241 - 0 - - -
ERDB 1,400 1,027 73 - - - Source: DENR
Performance under the NGP. DENR data shows that the NGP
implementation in 2011 and 2012 attained its targets of area
planted, with an accomplishment rate of 129% and 111% respectively,
at the national level (Table 8).
In 2011, DENR alone missed its own NGP target with an
accomplishment rate of only 82%. Among the regions, only CAR,
Region VI and NCR did not attain their targets. Both the ARMM and
the DENR Central Office have 0% accomplishment in 2011, with
targets of 588 and 19,241 hectares respectively (Table 8).
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Congressional PoliCy and Budget researCh dePartment
In terms of fund utilization, data shows that as of December
2011, the NGP was not quite performing well with only 79% fund
utilization rate at the national level. Among the findings, it is
notable that a) NCR and Ecosystems Research and Development Bureau
(ERDB) which did not attain their planting targets had 100% fund
utilization; b) most of the regions which attained their planting
targets had lower than 100% utilization; c) ARMM which had a 0%
accomplishment in planting had a 100% fund
Table 9 ngP sTaTemenT oF alloTmenT, obligaTions
incurred and uTilizaTion, as oF december 31, 2011 (in Thousand
Pesos)
1
Particulars Total AllotmentTotal
Obligation% of
UtilizationGrand Total 1,331,143 1,048,945 79CAR 105,962 101,683
96R-1 58,186 58,098 100R-2 66,914 61,478 92R-3 87,756 82,000 93R-4A
86,516 80,417 93R-4B 72,106 71,907 100R-5 74,202 59,634 80R-6
72,318 16,131 22R-7 74,488 65,932 89R-8 111,311 109,767 99R-9
65,901 63,046 96R-10 69,760 59,886 86R-11 65,635 62,636 95R-12
63,166 56,645 90R-13 68,267 62,387 91NCR 10,025 10,025 100ARMM*
7,000 7,000 100Central Office (OSEC) 153,430 2,073 1ERDB 17,300
17,300 100
As of May 2012, updated figures show that the NGP fund
utilization rate has improved. Nationally, in 2011, the program has
a fund utilization rate of above 80% for current funds and above
90% for continuing funds (Table 10). Dr. Israel explained that
these figures imply that the fund utilization performance of the
NGP is improving.
Table 10ngP sTaTemenT oF alloTmenT, obligaTions incurred
and uTilizaTion, as oF may 11, 2012 (in Thousand Pesos)
1
Particulars Total Allotment Total Obligation % of UtilizationFY
2010 1,243,208 1,200,432 96.56 Current 1,012,720 969,987 95.78
Continuing 230,488 230,445 99.98FY 2011 1,423,462 1,189,138 83.54
Current 1,380,729 1,147,026 83.07 Continuing 42,733 42,112
98.55
Performance Based on COA Reports. COA reported that based on the
reports of the DENR, the targets for areas planted from 2003 to
2010 were more than attained except for 2009 and 2010 (Table 11).
The reported performance for forest protection was also highly
satisfactory in years covered by the report.
Source: DENR
Table 11naTional reForesTaTion TargeTs and accomPlishmenTs
rePorTed by The denr, 2003-2010
Source: COA Annual Audit Reports
Source: DENR
1
Year Rehabilitation of degraded forestlands area planted
(hectares)
Forest protection forest are patrolled/protected (hectares)
Target Accomplishments % of Accomplishments Target
Accomplishments% of
Accomplishments2003 14,914 15,087 101 - - -2004 15,495 20,333
131 - - -2005 19,508 20,753 106 - - -2006 4,657 7,222 155 - - -2007
5,936 6,662 112 4,075,832 4,089,465 1002008 29,538 43,609 148
4,903,853 4,903,855 1002009 57,668 54,789 95 - - -2010 16,538.50
14,836 90 4,737,664 4,762,227 101
utilization rate; d) and the Central Office only had 1% fund
utilization rate (Table 9).
Despite these reports, COA also made several observations that
point to the inadequacy and
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Assessment of the efficiency And effectiveness of the
RefoRestAtion PRogRAm of the denR
problems in the conduct of reforestation by the DENR. Among the
reasons put forward behind the non-attainment of targets in many
regions were: a) desired seedling survival rates of 97% were not
attained; b) some funds were utilized for purposes other than their
intended objectives; c) no seedling was produced because no funds
were allotted for the maintenance of the project; d) only a
fraction of beneficiaries continued the maintenance and protection
activities or complied with their obligations; e) the Inspection
and Acceptance Committee was negligent; f) delay in the
implementation of projects due to the delay in release of funds and
slow preparation of required documents; g) seedlings were procured
by beneficiaries from commercial nurseries instead of own
established nurseries; h) submission of financial documents was
delayed because of the change of implementers; and i) transfer of
project areas due to unsuitability of areas initially proposed for
development.
To address deficiency in program implementation, COA recommends:
a) the implementation of NGP and similar programs should be
effectively monitored and evaluated periodically at national,
regional and local levels; b) management should instruct the
Planning, Policy and Project Management Office and the Financial
Management Services to jointly monitor the release and utilization
of program funds; c) management should instruct the Regional
Executive Directors to see to it that the seedlings to be planted
are within the DENR standards and the protection and maintenance
activities for seedlings planted are carried out; d) management
should assess the adequacy and enhance the existing measures to
protect seedlings during typhoons and summer season; and e)
monitoring teams should be formed to closely monitor and encourage
contractor Peoples Organizations/Coops to finish their
reforestation contracts on their due dates.
However, Dr. Israel pointed out that not all of the COA
recommendations were implemented by the DENR and that some were
only partially implemented. He suggested for DENR to make a strong
effort to implement all the recommendations and provide
a strong rationale on why other recommendations were not
implemented.
Perceptions of Key Informants and Local Stakeholders. Dr. Israel
also presented the combined results of the Key Informant Interviews
(KIIs) and Focus Group Discussions (FGDs) on the various issues in
reforestation. Serious problems encountered by key informants and
local stakeholders include: a) limited DENR manpower and financial
resources, including for monitoring and evaluation; b) some
reforestation areas were unsuitable; c) substandard seedlings from
improper sources were used; d) diseases attacked seedlings and
trees; and e) typhoons and other natural calamities impedes
reforestation.
Based on the perception of stakeholders, the reforestation
program of the DENR performed fairly well. Although overall targets
in terms of area planted were not attained, some individual targets
were achieved.
It was viewed as having actually improved forest cover, reduced
illegal logging, enhanced biodiversity, improved water availability
and quality, promoted downstream irrigation, controlled flood and
landslides, and increased environmental awareness.
In terms of poverty alleviation, it was perceived to have
actually raised the availability of food, personal incomes and
livelihood opportunities of the local people. However, poverty
remained an issue due to inherent problems including the lack of
capital to buy farm inputs and equipment.
Despite the aforementioned positive perceptions, the
stakeholders viewed the reforestation program of the DENR as being
only partially successful in attaining its objectives and the NGP
as being only partially effective and efficient in its
implementation. For the NGP, in particular, the stakeholders
asserted that there was a delay in the initial implementation due
to the non-availability of mobilization fund. The limited personnel
of DENR also constrained its implementation.
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Reassessment of Policies
Dr. Israel reviewed policies using past related literature and
materials. The study found out that there are policies in the
mining and agro-forestry sectors that may have had a negative
impact on the reforestation program over the years. He discussed
the impacts of these policies in the reforestation efforts of the
country.
Executive Order 79. This EO intends to institutionalize and
implement reforms in the mining sector. However, it allows existing
mining contracts within the No-Go Mining Zones to continue to be
valid and in effect. This means continued exploitation of natural
resources, including forest resources, as most of those areas
included in the No-Go Mining Zones have several existing mining
operations. Also, key biodiversity areas and critical watersheds
are not included in the list of the No-Go Mining Zones.
Republic Act 7942. The Philippine Mining Law of 1995 gives
higher priority to mining over forestry and puts to risk second
growth forests in mining areas. Although the law requires that
mining operations must rehabilitate second growth forests in their
area of operation, it remains doubtful that these forests can be
brought back to their original form.
Presidential Decree 1899. The Small-Scale Mining Decree of 1984
empowers provincial governors to unilaterally issue small-scale
mining permits. This policy promotes small-scale mining operations
that are particularly damaging to forestry because small-scale
miners cut trees for the timbering of their tunnels and for
domestic and related purposes.
Executive Order 23. Issued in February 2011, EO 23 imposes an
indefinite log ban all over the country and creates an Anti-Illegal
Logging Task Force. However, Dr. Israel explained that it is seen
as a faulty approach to forest management. With the imposition of
log ban, subsistence upland dwellers may swarm the forests and
indiscriminately cut tress as concessionaires abandon the areas
they
once protected. Also, logging ban can result to the loss of
public revenues, incomes and employment in the logging
industry.
Republic Act 9147. The Wildlife Conservation and Protection Act
establishes critical habitats that protect and conserve threatened
plant species. However, the establishment of these habitats
diminishes the effective areas where commercial harvesting and
collection of plants for livelihood purposes can be done.
Dr. Israel pointed out that without more intensive quantitative
and qualitative impact analyses of these policies, it would be
inappropriate to conclude whether or not these laws and policies
should be continued, amended or abolished. He recommended that a
fuller study be commissioned using appropriate methods in analyzing
the impact of these policies to reforestation. All relevant
stakeholders should be involved in the study and results should be
disseminated to the proper audiences to gain support and
acceptance.
Summary and Conclusions
The overall purpose of the study is to determine if the
reforestation program of the DENR over the years has been
successful in attaining its stated objectives. According to Dr.
Israel, the goal was to develop recommendations to improve
reforestation activities in light of the NGP. Among the most
important findings of the study are: a) at the national level, the
reforestation program of the DENR has only partially attained its
replanting targets; b) also at the national level, it appears to
have become relatively inefficient in the conduct of replanting
activities over the years; and c) at the individual site level, it
may have been effective to some degree in increasing incomes and
livelihood opportunities, improving natural resources and achieving
the other objectives of reforestation in many areas.
Dr. Israel explained that much of the success of the NGP in
particular, and future reforestation programs of the country in
general, would depend on complex
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Assessment of the efficiency And effectiveness of the
RefoRestAtion PRogRAm of the denR
and sometimes intertwining factors. Other than the infusion of
sufficient financial and manpower resources, a reforestation
program would have a better chance of attaining its objectives if
it can sufficiently monitor its current activities and effectively
implement changes in its operation. Dr. Israel hoped that the
recommendations proposed by the study can be afforded serious
consideration and eventually implemented, for the improvement of
the NGP and other future reforestation programs of the country.
Presentation of Director Calderon
Before the open forum, Director Ricardo Calderon of the Forest
Management Bureau-NGP also presented the accomplishments and
updates of the NGP. Part of his presentation included the state of
the forest, NGPs framework/coverage, areas for development, NGPs
strategies and expected program outcomes.
State of Forest. Among the ten Association of South East Asian
Nation (ASEAN) member states, only Philippines and Vietnam
registered positive increase in terms of forest cover from 1990 to
2010
with 16.7% and 47.4%, respectively. Other member states that
registered a decline in their forest cover include Brunei,
Cambodia, Indonesia, Lao PDR, Malaysia, Myanmar and Thailand.
NGP Strategies. National Greening Program adopts strategies that
are not found in previous greening efforts. The NGP employs social
mobilization which harnesses the collaborative effort of both
public and private sectors, POs, NGOs and civil society. It
harmonizes initiatives of the government and partners for
consolidation and complementation of other
components/mandates/activities especially production and planting
of seedlings under the program. It also provides incentives for
beneficiary
communities by making them priority recipients of the
Conditional Cash Transfer of the DSWD besides the proceeds from
established agro-forestry plantations.
NGP Accomplishments. In 2011, the NGP planted 89.6 million
seedlings in 128,558 hectares of forestlands generating a total of
364,088 jobs from seedling production and plantation establishment.
In 2012, the program planted 125.6 million seedlings in 221,763
hectares which generated 384,000 jobs for PO partners and hired 625
extension officers.
Expected Program Outcome. In terms of increasing productivity in
the uplands, the NGP intends to enhance farm level productivity,
improve household incomes and increase production of food crops,
timber and non-timber forest products. The program is also expected
to ensure economic security in the uplands by increasing and
providing sustainable supply of forest-based raw materials, thereby
optimizing the use of upland resources. The NGP is also expected to
stabilize environmental condition in the uplands by increasing
forest cover by 12% (based on 2003 level) equivalent to 7.2 million
hectares with 85% survival rate. It is also expected to increase
water holding capacity, reduce downstream flooding and soil
erosion, and improve environmental services.
Open Forum
After the presentation of Director Calderon, stakeholders raised
key issues and concerns that merit further discussion:
Inefficiency in replanting activities. Reforestation Committee
Secretary Rommel Reyes inquired on the relative inefficiency in the
conduct of replanting activities of the government. Dr. Israel
replied that efficiency is measured based on time-series data on
output-input ratio in the area planted and the cost of planting.
Based on past trends, ratio actually decreases over time indicating
inefficiency in reforestation activities. In terms of how much the
government spends on reforestation, the country is producing much
less in area hectarage.
Director Ricardo Calderon, National Program Director of NGP,
presented the accomplishments and updates of the NGP.
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Congressional PoliCy and Budget researCh dePartment
Basis in measuring efficiency and effectiveness. Ecosystems
Research and Development Bureau (ERDB) Director Portia Gamboa
suggested that in the assessment of the NGP, other outcomes and
objectives should also be considered in measuring
Dr. Portia Gamboa, Ecosystems Research and Development Bureau
Director, inquired on the basis of measuring the effeciency and
effectiveness of the NGP.
Dr. Romulo Miral, Jr., OIC of CPBRD, asked to be clarified on
the framework used by Dr. Israel in his study.
the efficiency and effectiveness of the program. She added that
based on the study, the basis of measuring the efficiency and
effectiveness is solely based on the area planted/hectares. The
study should also consider other objectives of
the program such as job generation, biodiversity conservation
and carbon sequestration. Dr. Israel opined that the other
objectives of the program are evaluated in the CARAGA Region and
there is already partial assessment of these objectives. However,
Dir. Gamboa pointed out that the assessment should include other
sites and not rely on just one region in the assessment of the
program.
Monitoring accomplishment of the NGP. Philippine Institute for
Development Studies (PIDS) Director Sheila Siar asked how the DENR
monitors and evaluates the performance of the program vis-a-vis its
other objectives. She also asked what indicators are used in the
evaluation of its performance. NGP Director Calderon answered that
an important tool in measuring the effectiveness of the program is
through job generation, that the rate of employment in the program
can be used as an indicator in evaluating its performance. In terms
of monitoring the program, DENR with the help of its
Community-Based Forest Management (CBFM) partners are currently
undergoing nationwide monitoring. Monitoring includes focus group
discussion with stakeholders in properly assessing the program.
Framework of the study. Dr. Miral of CPBRD asked to be clarified
on the framework used by Dr. Israel
in his study. He cited that the beginning stock ending stock
framework was somewhat lost in the presentation. He added that the
indicators used in the study are not pointing to the framework. For
example, indicators such as targets and
accomplishments, efficiency output and cost are not parallel
with the framework used in the study. Dr. Israel answered that the
framework presented was actually a partial framework of the study.
The framework shown in his presentation did not completely explain
the full assessment done in the effectiveness of the program. He
also explained that the measurement of the efficiency and
effectiveness did not come from the framework, but through the
methodology of the study. The framework only pointed to the
accounting of forest resources over time.
Lack of forestry data. Dr. Llanto of PIDS explained that the
effectiveness of the program is very hard to measure. The lack of
accurate forestry data is a challenge in assessing forest
resources. He explained that agencies are slightly nervous in
sharing data. He suggested that government agencies should
cooperate in terms of sharing data, to ensure value for money on
programs that are being implemented. Future program assessment
should also consider the survival rate of such resources. Director
Calderon reacted by saying that the DENR-NGP is open in sharing its
data and information. Forestry data and information are made
available through websites and site maps. He also answered that the
survival rate for reforested tree species is 80% after three
years.
Sourcing of indigenous tree species. Reforestation Committee
Secretary Rommel Reyes said that some congressmen are concerned
with the sourcing of indigenous tree species. The common complaint
of these congressmen and other members of the Special Committee on
Reforestation is that they find it hard in sourcing out indigenous
species of seeds,
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Assessment of the efficiency And effectiveness of the
RefoRestAtion PRogRAm of the denR
References
Israel, Danilo C. and Lintag, Jeffrey H. Philippine Institute
for Development Studies. 2013. Assessment of the Efficiency and
Effectiveness of the Reforestation Program of the Department of
Environment and Natural Resources
Forest Management Bureau. National Greening Program. PowerPoint
Presentation by NGP Director Ricardo Calderon.
.
due to the failure in attaining the desired survival rate of
these seeds. He cited that most of the seeds distributed by DENR
are non-native species. He inquired on how should DENR addressed
these problems of selecting, propagating and distributing of seeds.
Director Calderon answered that the DENR already invested in clonal
nursery for mass propagation of these indigenous species. Seed
production areas are established in different regions to
continuously supply the needed seeds for reforestation up to
2016.
Director Aquino of CPBRD also shared the experience of Israel in
reforestation wherein trees were planted near a river without
considering favorable species that can survive in that area. It
resulted to the drying up of the river because they did not
consider the effects of the tree species to the river. Director
Calderon added that the objective of planting and site selection is
important in determining the proper selection of tree species.
Re-assessment of policies. Mr. Sherwin of Senate Economic
Planning Office also asked on how the government should address the
issues regarding the policies that affect reforestation, if there
is a need to simplify laws, making them more comprehensive in
nature. Dr. Israel answered that the problem is not the laws
themselves but in the information dissemination on the laws that
relate to reforestation. He said that IEC (Information Education
Communication) materials must be properly distributed to Peoples
Organizations. The simplification of language to native dialects
will provide stakeholders better understanding of these
policies.
Delineation of forestland. Director Bangsal of CPBRD inquired on
the update on the demarcation of forestland boundary of the DENR.
Director Calderon explained that ground delineation in all forest
areas in the country is finished, except ARMM where there is still
an ongoing delineation. He stressed that the big challenge in ARMM
is the training of its own technical people who will be responsible
for ground delineation in the region. Provinces of Maguindanao,
Iligan and portions of
Basilan are still in the process of demarcating their
forestlands. The major challenge in the region is Tawi-Tawi because
of the security of its technical staff.
Zero-based budgeting. Dr. Miral of CPBRD closed the forum by
pointing out the importance of zero-based budgeting in the
allocation of government funds. He stressed that the budget is a
very important instrument of the government in addressing
socio-economic problems of the country. Zero-based budgeting is
seen to enhance the use of evidence-based analysis in the review of
the budget. This budgeting technique is also important in the
conduct of budget hearings of the different agencies, ensuring
strategic and efficient allocation to highly effective programs.
Prepared by JOHN PAUL S. QUIETA.